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sW>kՎ-y\'ӲgUo_4*<i^oV|M:{`lj۟l_Uymuv$_::$̟d>ĩW7e^t#_\_ 79/xsϲ;%u'5DW?0Vg~n.v_FGaǷ۟ڟ[]#~ɺ<.'JH=jk|>?q5do?d_?O9l?}y{g/ [^-HֿMcɃ/fm ӘZd M\^[Ͼğ?i,l}E'-33o]knGwo|Z}s`HKX;W[rqz}NY/_>;ު}_:,]Y?竴+dz{ѿG9mێ^Q~q_|x1{N9`%=kpeKl?]r#LmU=d7U_Ͽ_|&V9Q?cmkn?tzr \^HmésuhNvp?gO|,B|%Ֆ.9OI;tyE]?,'6H5[:{Aso\՗Q}M㧭YG}jMfcۗ?^x?,_5Em?K8/Np-A.{DYu^_z'oyxkײg]t /X-[~վ{Cg{G;Cο[i^S?_2䅾{'G܃_iu u&_.OXK{7wO?e zk,>:^}Y^]HI?㣠޺;NksE$ TgMI<[fjxuIJ?1'l֪p9I7U)>ÆU{oa?_]ԝG%o=lu=NQ'??{u+`~zEt/+_L`=R^ː?_[7FVnyVzlCdĝW'wX[t0O%5Oq:?{=j?]3Pië.-eG$Ǐx u5=\&mkm=WmV$N ǡONc N]yVMH_JOZ*EQt}ɏ2u>>EuX<άß=/Uz&K[X^_QTfpG%%lu|wԿֽ:쨻'Ylq~OӼ}m/OVIoJo䰾yNR-C>DLY7_MCն]uIzWǮ{> ?oWՔ l??GE?QC۟#?Aw0걾LGW{_>=jht/[?b}jn_#miJ?Q'<aǟ_ŧc+O\;s gu}RZow<+ OW[{rN=lGWר~Ӧ??z{HHߜK]OLGSPk^m~m:gKY({yK;Jg֋>lﲽO}S;ܿ_|.lBGeMVeo1}?s[_7|LLJW=}J=k=CgrI=?fjxs7wվb5KJK?Z!2nu:a}Yn#'k/_|saN߾=U;Sܿ|!l^=f.(ts_p;;%om:}7^^oTOGR}?_hB+iՆ-O[wxӳeӑ?'o}]fc?}1ʽ<զ[wzozǾ ݱH=T?YcC?㣢kǿ@$e=t#/_Z_ :9rOc,y[Kk})c_P4_6>K#i[ 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?̟tu~S?&z_=1wӨ?L]b'4?~λ֐?O=[Nq?|?}_iVN7yu3/6_q#$Ncnn;ɯWq+=֟~>vJE羴uξ2[?l=auߎPOkKoR(S`7 :Ŀ/;Kh=Qo|l#}䇿7-ߺ? 1RG?/f?lC~_XcOō_m_xo<랳INgѿl_f{#OSfVdQӎC։=3s?#l}Л\sY!:ZJ>?/"^U!hd?$~_$+_?V cgu]s6?~jXnٗ ul&>An+R\W{?"N`M /y{Oowm߮}etwçc}X;'E{qֳ/Z߯Ӿ]{hhr-L/Pu~bwN_c}Nj\:4l.2$mOG_%ݣhMWʳUZ~;w?Bp[va{*<'_6}n}}*dOJ$+e?wӒMGJ€v,?r{~cG_,Z+oxſHtuӬ ru ޻cߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽tH7gC{q܋<͓zQyxf_> /IQT{Lٷ~зZŽl5~N楷vn-Ee~V(Ӽ?u'COjWe u({C 5;n?]sO hp~ ^Zڿg[W-x㭣{do.N\z DyU=y.J׎O_WΘq~xx']/Ҷb[Qύ_7$=kV۬ ϰ,u:Aw?#o{3ʕrՉ%Zm;ueq7dF/Z_\nG=kNÝx_{;[oE}?6섾Woailxt72p{MPXl}}^_F~{*`N'~+og_N?v_q+s'Ѳux̖Ey:x˟DuzoOtK|ҽd?c}_?u?xoXQwȟ?I ?̟tu~S?&z_=1wӨ?L]b'4?~λ֐?O=[Nq?|?}_iVN7yu3/6_q#$Ncnn;ɯWq+=֟~>vJE羴uξ2[?l=auߎPOkKoR(S`7 :Ŀ/;Kh=Qo|l#}䇿7-ߺ? 1RG?/f?lC~_XcOō_m_xo<랳INgѿl_f{#OSfVdQӎC։=3s?#l}Л\sY!:ZJ>?/"^U!hd?$~_$+_?V cgu]s6?~jXnٗ ul&>An+R\W{?"N`M /y{Oowm߮}etwçc}X;'E{qֳ/Z߯Ӿ]{hhr-L/Pu~bwN_c}Nj\:4l.2$mOG_%ݣhMWʳUZ~;w?Bp[va{*<'_6}n}}*dOJ$+e?wӒMGJ€v,?r{~cG_,Z+oxſHtuӬ ru ޻cߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽tH7gC{q܋<͓zQyxf_> /IQT{Lٷ~зZŽl5~N楷vn-Ee~V(Ӽ?u'COjWe u({C 5;n?]sO hp~ ^Zڿg[W-x㭣{do.N\z DyU=y.J׎O_WΘq~xx']/Ҷb[Qύ_7$=kV۬ ϰ,u:Aw?#o{3ʕrՉ%Zm;ueq7dF/Z_\nG=kNÝx_{;[oE}?6섾Woailxt72p{MPXl}}^_F~{*`N'~+og_N?v_q+s'Ѳux̖Ey:x˟DuzoOtK|ҽd?c}_?u?xoXQwȟ?I ?̟tu~S?&z_=1wӨ?L]b'4?~λ֐?O=[Nq?|?}_iVN7yu3/6_q#$Ncnn;ɯWq+=֟~>vJE羴uξ2[?l=auߎPOkKoR(S`7 :Ŀ/;Kh=Qo|l#}䇿7-ߺ? 1RG?/f?lC~_XcOō_m_xo<랳INgѿl_f{#OSfVdQӎC։=3s?#l}Л\sY!:ZJ>?/"^U!hd?$~_$+_?V cgu]s6?~jXnٗ ul&>An+R\W{?"N`M /y{Oowm߮}etwçc}X;'E{qֳ/Z߯Ӿ]{hhr-L/Pu~bwN_c}Nj\:4l.2$mOG_%ݣhMWʳUZ~;w?Bp[va{*<'_6}n}}*dOJ$+e?wӒMGJ€v,?r{~cG_,Z+oxſHtuӬ ru ޻cߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽tH7gC{q܋<͓zQyxf_> /IQT{Lٷ~зZŽl5~N楷vn-Ee~V(Ӽ?u'COjWe u({C 5;n?]sO hp~ ^Zڿg[W-x㭣{do.N\z DyU=y.J׎O_WΘq~xx']/Ҷb[Qύ_7$=kV۬ ϰ,u:Aw?#o{3ʕrՉ%Zm;ueq7dF/Z_\nG=kNÝx_{;[oE}?6섾Woailxt72p{MPXl}}^_F~{*`N'~+og_N?v_q+s'Ѳux̖Ey:x˟DuzoOtK|ҽd?c}_?u?xoXQwȟ?I ?̟tu~S?&z_=1wӨ?L]b'4?~λ֐?O=[Nq?|?}_iVN7yu3/6_q#$Ncnn;ɯWq+=֟~>vJE羴uξ2[?l=auߎPOkKoR(S`7 :Ŀ/;Kh=Qo|l#}䇿7-ߺ? 1RG?/f?lC~_XcOō_m_xo<랳INgѿl_f{#OSfVdQӎC։=3s?#l}Л\sY!:ZJ>?/"^U!hd?$~_$+_?V cgu]s6?~jXnٗ ul&>An+R\W{?"N`M /y{Oowm߮}etwçc}X;'E{qֳ/Z߯Ӿ]{hhr-L/Pu~bwN_c}Nj\:4l.2$mOG_%ݣhMWʳUZ~;w?Bp[va{*<'_6}n}}*dOJ$+e?wӒMGJ€v,?r{~cG_,Z+oxſHtuӬ ru ޻cߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽u~{ߺ^׽tH7gC{q܋<͓zQyxf_> 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ABRREVIATIONS

ADB

Asian Development Bank

DMC

developing member country

MEXT

Ministry of Education, Culture, Sports, Science and Technology

MOE

Ministry of Education

PISA

Programme for International Student Assessment

PPP

public–private partnership

PSL

private school law

ROK

Republic of Korea

PK 1}-X[ttops/xhtml/ack.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

ACKNOWLEDGMENTS

The preparation of this publication was led by Meekyung Shin, education specialist, Human and Social Development Sector Office, Sectors Group (SG-HSD), Asian Development Bank (ADB), with consultants Yong Kim of Korea National University of Education, Chong Jae Lee of Seoul National University, Hideyuki Konyuba of Teikyo University, and Young Sik Kim of Kyoung Nam University.

The project team highly appreciates the peer review and support provided by the following during the study: ADB staff Kiyoshi Taniguchi, regional lead economist, Office of the Chief Economist and Director General, Economic Research and Development Impact Department; Abhishek N. Hegde, public–private partnership specialist, Central and West Asia Department; Paul Vandenberg, principal economist, Economic Analysis and Operations Support Division, Economic Research and Development Impact Department; and Smita Gyawali, senior project officer, South Asia Department.

The team is also grateful to Dorothy Geronimo, senior education officer, SG-HSD, ADB, who supported the finalization of this publication in close collaboration with April-Marie Gallega, associate communication coordinator, Department of Communications and Knowledge Management, ADB.

This publication would not have been produced without the encouragement and overall guidance of Shanti Jagannathan, principal education specialist, SG-HSD; and Brajesh Panth, former chief, Education Sector Group, Sustainable Development and Climate Change Department (now SG-HSD).

PK |z-XQ,,ops/xhtml/backcover.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan
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PK }-Xops/xhtml/ch01.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

I INTRODUCTION

Many Asian countries face two challenges in education: expanding educational opportunity and improving the quality of education. According to the World Bank, the secondary school enrollment rate is about 70% in South Asia and 85% in East Asia. These rates are lower than in emerging Europe and Latin America, as well as Western Europe and North America (Figure 1.1). While quality improvement in education usually follows quantitative expansion, many Asian countries will soon struggle to improve the quality of education.

The educational challenge that developing member countries (DMCs) of the Asian Development Bank (ADB) must grapple with is far more complex than simply expanding access to education. Since most DMCs have only limited national financial resources that can be invested in education, it is important to maximize educational opportunity with the resources available. After expanding educational opportunity, they must improve the quality and diversity of education, and develop an educational accountability system appropriate for each country’s circumstances. DMCs therefore need to establish strategies for educational development that meet key goals: accessibility, quality, diversity, and accountability.

The decisive factor in both expanding educational opportunity and improving its quality is education finance. Developing countries become caught in a vicious cycle in which they do not sufficiently expand educational opportunity because of tight fiscal constraint but then cannot enable economic development for lack of educated citizens. In this regard, the Republic of Korea (ROK) and Japan are exceptions. The ROK rose from the ashes of war to achieve, 70 years on, an impressive economic growth and democratic development (Lee, Kim, and Byun 2012). There is no doubt that education significantly contributed to development in the ROK. Japan also achieved tremendous economic growth in a short period after World War 2, with education similarly critical to economic growth.

During the postwar period, the ROK and Japan both suffered deteriorated national finances. Consequently, it was difficult for their governments to expand educational opportunities using public financial resources. Under these circumstances, both rapidly expanded educational opportunities by encouraging the establishment of private schools and supporting their operation. The ROK and Japan both succeeded in expanding secondary education opportunity and improving the quality of education by using private schools.

Private schools can play important roles in educational development. The experience of the Netherlands illustrated this well (Patrinos 2013). Despite 70% of Dutch schools being private, public finances are equally distributed among all schools. None are favored as elite, and all excel in academic achievement. Parents can choose among several schools, mainly for religious reasons. The Netherlands is an example of where private schools are used to enhance parental freedom of choice, autonomy in school management, and quality in education.

Many advantages can be expected from promoting educational development by catalyzing private schools to share roles with public schools (Patrinos, Barrera-Osorio, and Guaqueta 2009). Educational opportunity can be expanded, parents can enjoy freedom of choice, school diversity can be promoted, and the quality of education can be improved through competition among schools. For this reason, public–private partnership (PPP) in education policy has been increasing significantly.

PPP in education can, however, generate negative effects as well. In many countries, a hierarchy is created between public and private schools. Usually, students from families with high socioeconomic status enter private schools, and students from poorer families study in public schools, often undermining educational equity. Though the state provides financial support to private schools in many countries, corruption may occur when private school systems of accountability are not well established. Therefore, rather than focusing only on expanding private schools or strengthening financial support for private schools, policymakers must strike a balance between using private schools to expand educational opportunity and ensuring educational equity. Considerable attention should be paid to ensuring accountability while expanding financial support for private schools. There are many types of PPPs, and how effectively this policy instrument works depends on how PPPs are designed. In this regard, a theory of PPP needs to be developed.

Both the ROK and Japan expanded educational opportunity by developing private schools. In the process, both experienced serious problems such as impaired educational equity and weak accountability. While education PPP in the ROK and Japan has not been perfect, case studies of both countries presented in this report may help DMCs expand educational opportunity and improve the quality of education.

PK -X9?ggops/xhtml/ch02.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

II PUBLIC–PRIVATE PARTNERSHIP IN EDUCATION

A. Purpose and Rationale

PPP is a mechanism or strategy by which governments procure and implement public services using expertise and resources from the private sector. A framework for PPP policymaking introduced by the World Bank (Baum et al. 2014) emphasizes encouraging innovation by providers; holding schools accountable; empowering the participation of parents, students, and communities; and promoting diversity of supply (Figure 2.1).

Encouraging innovation by providers; holding schools accountable; and empowering the participation of parents, students, and communities have been issues of traditional public provision. The empowerment and value that comes with solving them can differ according to the combination of the public and private resources employed. Promoting diversity of supply, or broadening choice in the school market, is the major difference that private sector engagement brings. This enhances tension between diverse providers in education and ensures a lively market. The government continues to promote private education as it exemplifies a neoliberal approach in public education. The object of PPP in policy is therefore to attain, under adequate regulation, efficient and equal education in the public system without stoking corruption in private education. This is far from shifting responsibility for basic education to the private sector, but rather sharing public responsibility and risk with the private sector, toward equal educational access and attainment.

B. Forms of Public–Private Partnership

According to the World Bank, private participation in PPP refers to services provided by any nonstate entity, which may include any nongovernment providers (Baum et al. 2014). These providers include profit or nonprofit organizations, nongovernment organizations, faith-based groups, and community organizations. Based on that definition, PPP can use different forms of contract and agreement, depending on the allocation of risk to each sector (Figure 2.2).

Education PPP projects differ based on the (i) share of funding from each sector, (ii) source of funding for educational services, and (iii) fundamental goal of private sector participation. In line with earlier statements on how the allocation of responsibility can benefit or complicate education, the partnership mode preferred by governments initially sustains public authority over funding and controls the system by regulating private schools. However, governments may not strictly restrain enrollment under a market mechanism, unlike private schools that have profit objectives.

According to this classification of PPP in education, three key aspects can distinguish the types of PPP contracts: (i) the provision of the education system, (ii) the source of funding for provided services, and (iii) the type of services contracted from each sector. Figure 2.3 shows examples of organizations in practice (Patrinos, Barrera-Osorio, and Guaqueta 2009).

Considering the types of partnership available, Table 2.1 summarizes four different forms of education PPP can be practiced, depending on the major services contracted, by focusing on the role of each sector when the public sector provides funds and the private sector provides services. When examining PPP contracts from another perspective, an important element is accountability. While much of PPP is subject to contracting for legal accountability, similar to any other partnerships bound by a contract, many countries currently seek alternative and affordable forms of accountability in potential partnerships. Verger and Moschetti (2016) introduced six potential models for accountability: bureaucratic, managerial, market, social, professional, and network. The features of each model are shown in Table 2.1.

Table 2.1: Features of Accountability Models

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Source: Verger and Moschetti (2016).

How PPP projects are carried out differs among and within countries. In most countries, at least some education services involve private actors. Approaches may differ for various school levels within a single country, from preschool to higher education. They can also depend on why the government introduced private interventions in public education. Some European countries, for instance, allow privately owned religious schools because of long tradition more than for expanding access to education or equally distributing it. This kind of partnership may stratify students by educational attainment and performance. The forms of PPP called for in this context are thus contracts with nonprofit providers, such as nongovernment organizations running community schools, rather than for-profit private school chains (Verger and Moschetti 2016).

C. Private School Policy as Public–Private Partnership

If PPP is considered only as contracts or agreements, the prospects for using it to plan national education are low. If, however, PPP is considered in terms of the government’s policy toward private schools, the role of private schools and the direction of national education policy can be more clearly understood. It enables an analytical view of how educational opportunity, quality, diversity, and accountability change according to government policy toward private schools. The current study classifies private school policies into four categories along two criteria: financial support for private schools and government regulation of them .

Government policy toward private schools may be categorized by how much financial support the government provides to private schools and to what extent the government regulates them. Under a laissez-faire policy, private schools receive little financial support from the government and are run independently. Under a supervisory-regulated policy, private schools receive from the government financial support and supervision. Under collaborative governance, both private and public schools receive financial support from the government and operate autonomously according to operating principles agreed by consensus, with private schools jointly responsible for results. Under autonomy orientation, private schools receive little financial support and are delegated autonomous management.

When the government provides no financial support to private schools, its policy toward them is either laissez-faire, with weak involvement, or autonomy-oriented, with even less involvement. A laissez-faire policy recognizes private schools as independent organizations with their own income and without any government financial support. Under an autonomy-oriented policy, the government passively manages and supervises the operation of private schools with only a small public financial support. These government policies toward private schools are passive engagement that respects private school autonomy.

When the government provides financial support to private schools, its policy and accountability system is management supervision or governance-oriented self-regulation. Government control and regulation are strong under management supervision. When private school operational autonomy is recognized, the government is applying a governance-oriented autonomous policy. Figure 2.4 classifies the types of government policies for private schools according to financial support and regulatory form.

PPP can be defined as a cooperative relationship established between the private and public sectors to achieve common goals, tasks, and principles. Two important aspects of PPP in education are financial support and regulation (as described in the second paragraph in this section). If PPP in education is understood more broadly, from the government’s point of view, PPP in education is a policy toward private schools, while from the private schools’ point of view, it is a public responsibility.

The basic premise of policy toward private schools should be the recognition that they are major partners in public education and that they need financial support. Private schools’ recognition of their public responsibility, and financial support for private schools, can be established as the core principles of a public education system. PPP enables government support and regulation and allows private schools to be accountable. PPPs are variable, however, determining the effects of PPP requires examination of PPP types along five dimensions: access, equity, quality, diversity, and accountability.

In this report, an analysis of education PPP in the ROK assesses the relationship between PPP and the five dimensions, and an analysis of education PPP in Japan examines long-term development direction and tasks for private schools. These analyses have implications and suggestions for PPP involving private schools in DMCs. The accountability systems of private schools are summarized by government policy type in Table 2.2.

Table 2.2: Accountability System by Type of Government Policy Toward Private Schools

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Source: Author.

D. Advantages and Challenges of Adopting Public–Private Partnership in Education

Balancing public control and private intervention ensures the best outcomes from the partnership, as mechanisms of private intervention that benefit the private sector may not be good for public initiatives. This section presents advantages and challenges to schools when the PPP is introduced.

Advantages of Public–Private Partnership in Education

Risk Control and Efficient Financing

Risks that public education systems actually experience in terms of financing, operation, and professionalism, among other things, can be shared with private sector involvement. These include the burden on public finances from investment in the service-providing organizations, many of which are run privately (Patrinos, Barrera-Osorio, and Guaqueta 2009). With private marketing mechanisms, private financing aspires to boost interest in funding education from sources other than public coffers. Where the public has control and supervision, this can lighten the burden of making decisions and promoting change within individual schools or the whole system. Private operators are invited to participate and compete. In the Netherlands, where about 70% of schools are private and parents choose schools, Patrinos (2010) found public funding for private schools to be very effective. Meanwhile, some private schools with low profits stand to benefit from public subsidies, providing a financially sustainable business model for their schools while they provide public goods (Verger and Moschetti 2016).

Flexibility and Variety in Options

PPP contracts provide schools with more flexibility in their management, and the government can benefit by being able to provide to students, parents, teachers, and schools many more options than they had before (Patrinos, Barrera-Osorio, and Guaqueta 2009). With an adequate balance between regulation and autonomy, schools have more flexibility when hiring teachers and nonteaching staff, as well as in their organization, funding, and investment toward higher academic performance.

Revving Up Reform

PPP can accelerate the adaptation of new trends in education in terms of technology, infrastructure, and pedagogy. Some privately run schools that pursue resourcing strategies based on their established fields of excellence can try new organizational structures that marshal school staff to pioneer educational reform and advancement (Lubienski 2006; Verger and Moschetti 2016; Patrinos, Barrera-Osorio, and Guaqueta 2009). By contrast, public actors have been shown to be reluctant to take such initiatives. Even with PPP, legal and bureaucratic concerns may hinder the delivery of such benefit.

Enhancing Equity for Vulnerable Groups

One rationale for adopting PPP in education is to tackle the task—which is difficult for public schools—of providing low-income and marginalized students access to high-quality education (Patrinos, Barrera-Osorio, and Guaqueta 2009). For instance, voucher programs for vulnerable groups can improve access to education (Verger and Moschetti 2016).

Challenges of Public–Private Partnership in Education

Loss of Public Control and Authority

Private institutions may be seen to weaken public control under PPP in education as the participation of private actors increases. This fear tends to be found more often in fragile settings, where public authority is already unstable. Government officials may provide private actors apparent opportunities to participate but with underlying limitations, such as outdated governance and management approaches. Some officials are reluctant to invite private institutions to participate in the public system for fear of monopolization and abuse (Patrinos, Barrera-Osorio, and Guaqueta 2009).

Worsening Segregation

As much as consumer choice can financially advantage private schools, excessive competition for student placement can raise costs along with quality (Patrinos, Barrera-Osorio, and Guaqueta 2009). Thus, students from wealthy families cluster in high-achieving schools, leaving low-income and other marginalized students no choice but to attend under-resourced schools. It is therefore unlikely that PPP will narrow such opportunity gaps without proper governance but may instead further segregate students who have been and who have not been granted the opportunity to choose.

Strict Assessment and Philanthropic Capital

Another challenge from PPP in education is establishing an equitable and effective decision-making process for distributing funds. In the investment stage, public disbursement can apply diverse methods and rules for funding, such as funding using a fixed formula or according to performance assessments. If performance assessment is used as a basis for funding, it would be a challenge for public authorities to prepare a proper and agreed assessment structure. If the structure is not convincing, they may be perceived as abusing their authority, placing them and the private actors on a collision course with the public. Also, at a later stage of progress toward producing outcomes, a strategic gap in funding caused by inadequate government funds or private investment can leave private schools suffering unexpected losses in the short term. This may leave public officials placing unanticipated capital demands on private actors, which, if too large, could cause partnerships to collapse.

E. Impact of Public–Private Partnership on Education Policy

Funding from private providers for school education is one of the three key points shaping funding policy toward schools in many member countries of the Organisation for Economic Co-operation and Development (OECD 2017). Likewise in this report, while public funding from private actors is commonly perceived as coming from private schools, actual sources have been varied as other parties have started to participate in public education. Private schools and other institutions involved need policies that are fair to all schools while allowing adequate autonomy to run their own systems.

The role of the public sector in designing proper and adequate policy for private schools is as important as balanced equality, quality, and accountability in the private sector. Some aspects that need to be considered when designing policy for education PPP are as follows: (Sriram et al. 2014; Patrinos, Barrera-Osorio, and Guaqueta 2009; Steer et al. 2015):

(i)Public officials need to agree with private education providers on a sustainable finance model. If challenges occur in the system, the public sector can intervene to offset shortages. The aim should be to support students in need of aid. In some circumstances, the public sector can intervene and distribute the costs of needy students’ education based on affordability.

(ii)Clearcut indicators are needed to assess performance in terms of quantity and quality. Contracts need to hold private providers responsible for performing and producing favorable outcomes to an agreed standard. Public officials need to monitor and evaluate school performance periodically. They should ensure an arena for competition so that private providers can be replaced by other private institutions if outcomes are disappointing.

(iii)Contracts need to require that schools meet agreed standards in terms of infrastructure, staffing, following national curricula, and meeting performance benchmarks.

(iv)Governments can consider establishing a special agency to manage privately operated public schools, evaluate and regulate their performance and effectiveness, and ensure against abuse. Some examples are the Sindh Education Foundation, Pakistan Education Foundation, and Mauritius Private Secondary School Authority.

(v)Public officials should encourage a measure of private autonomy to keep partnerships positive. Providing private actors with a sense of autonomy may incentivize innovation in the system.

The World Bank’s Systems Approach for Better Education Results (SABER) has developed a framework for educational PPP policy (Table 2.3). Indexes may take different forms depending on what each country prefers to present. The box presents additional challenges facing DMCs.

Table 2.3: Evidence of Public–Private Partnership in Asia and the Pacific

Country

Form of PPP

Explanation

Australia

Founding new schools

•   The state government of South Australia arranged contracts with private suppliers to build new school infrastructure in 2006.

Australia

Founding new schools

•   The state government of Queensland signed with private suppliers 30-year contracts to establish seven schools, with the contract stating that certain educational services are provided by the government.

Bangladesh

Female secondary school assistance project

•   In association with the Asian Development Bank and the World Bank, the government provides to girls in need and who are able to meet certain requirements financial assistance and scholarships for secondary education.

Pakistan

Punjab Education Foundation

•   The foundation selects private schools and tracks their performance based on predefined performance criteria.

•   The key goal is to encourage out-of-school students to enroll. Schools enroll a mix of voucher-funded students and those who pay regular fees.

•   This PPP model involves different types of programs such as providing stipends per student enrolled in low-fee private schools, funding school establishment in rural and other underserved areas, and programs in which private entrepreneurs and civil society take over the management of heretofore public schools.

Republic of Korea

Subsidies

•   Upon entering secondary schools under the leveling policy for secondary education, students are randomly assigned to private or public schools within their district.

•   Private schools are obliged to meet certain requirements and under relatively strict regulation to prevent segregation that may be generated from having school choice. They may not charge students or parents fees for enrollment.

Philippines

Private school accreditation

•   The Philippines has a private voluntary accreditation system for schools, including institutions of higher education, that is managed by the Federation of Accrediting Agencies of the Philippines.

Thailand

Voucher schools

•   More than 17% of students go to private schools.

•   These schools do not receive full funding from the government, but they are subsidized through voucher systems.

•   To sustain adequate control over private schools, the government restricts schools’ authority to independently design curricula or set class size, for example.

PPP = public–private partnership.

Sources: Patrinos, Barrera-Osorio, and Guaqueta (2009); Sriram et al. (2014); Baum et al. (2014); and Asian Development Bank (2017).

Box: Challenges from Public–Private Partnership in the Asian Context

The following are challenges especially relevant to Asia:

(i)Government structures are often complicated and multilayered—central, state, and city—which poses governance challenges.

(ii)Public sector capability in terms of structuring collaboration and partnerships in education with private entities is often undeveloped, limiting officials’ ability to leverage private capacity well.

(iii)The immense scale and diversity of cultures, language, and geography, particularly in rural and remote locations, requires local customization.

Source: An elaboration from Sriram et al. (2014).

PK P0X=jops/xhtml/ch03.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

III PRIVATE SCHOOL POLICY IN THE REPUBLIC OF KOREA

A. Status

Enrollment Trends since 1960

The primary school enrollment rate in the ROK reached nearly 100% in the early 1960s (Table 3.1). The middle-school enrollment rate has increased since the late 1960s, when the government abolished middle-school entrance examinations. It exceeded 90% in the late 1980s and has been maintained above 95% since the 2000s. The high school enrollment rate has increased since the 1970s, when a high school leveling policy was introduced, and then exceeded 90% in the early 2000s.

Table 3.1: Primary and Secondary School Enrollment in the Republic of Korea (%)

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Source: Author based on data from KEDI Education Statistics Service.

Tables 3.2 and 3.3 show the number of lower secondary schools and students in the ROK from 1965 to 2020. In 1969, the Government of the ROK decided to abolish the middle-school entrance examination. This policy change spurred a rapid increase in the number of middle-school students and of schools to accommodate them. Budget constraints provided opportunities for private providers to play significant roles in meeting demand for lower secondary education. As a result, private middle schools accounted for 43.4% of the total in 1970, and private middle-school students, 48.6%.

Table 3.2: Number of Lower Secondary Schools in the Republic of Korea

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Note: Numbers in parentheses are private school percentages.

Source: Author based on data from KEDI Education Statistics Service.

Table 3.3: Number of Lower Secondary School Students in the Republic of Korea (’000)

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Note: Numbers in parentheses are percentages of private school students.

Source: Author based on data from KEDI Education Statistics Service.

Until the 1950s, the Government of the ROK had focused on comprehensively supplying compulsory elementary school education. Elementary school enrollment reached 96.4% in 1959. The government then, in the 1960s, invested heavily in lower secondary education. With this shift in educational investment priorities, private school representation in lower secondary education began to decline in the 1970s (Figure. 3.1). By 2020, the private sector share of middle schools had decreased to 19.6% and of middle-school students to 16.5%.

Tables 3.4 and 3.5 show the number of upper secondary schools and students in the ROK from 1965 to 2020. In 1974, the government implemented its high school leveling policy, expanding access to high schools rapidly to accommodate demand from students who had completed middle school. To compensate for limited public financial resources, the government relied on the private sector for expansion. By 1980, private high school representation had jumped to 51.0%, and private high school student representation to 69.4%. Private schools had thus assumed important roles in expanding upper secondary education. The percentage of private schools in upper secondary education began to drop in the 1990s, falling by 2020 to 40.0%, as the percentage of private high school students fell to 41.9% (Figure 3.2). Private school representation is still higher in high school education than in lower secondary education.

Table 3.4: Number of Upper Secondary Schools in the Republic of Korea

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Note: Numbers in parentheses are percentages of private schools.

Source: Author based on data from KEDI Education Statistics Service.

Table 3.5: Number of Upper Secondary School Students in the Republic of Korea (’000)

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Note: Numbers in parentheses are percentages of private school students.

Source: Author based on data from KEDI Education Statistics Service.

With expanded secondary education opportunity and the private sector contribution to it, conditions in middle and high schools improved steadily. Tables 3.6 and 3.7 show indicators that track changes in education conditions in middle schools and high schools. The rapid decrease in the student–teacher ratio and the number of students per class since the 1980s indicates that classroom conditions for teaching and learning improved substantially.

Table 3.6: Educational Conditions in Middle Schools in the Republic of Korea

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Source: Author based on data from KEDI Education Statistics Service.

Table 3.7: Educational Conditions in High Schools in the Republic of Korea

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Source: Author based on data from KEDI Education Statistics Service.

Recognizing Private Sector Contributions to Enrollment and Quality Improvement

Private schools have made critical contributions to the expansion of secondary education in the ROK (Kim and Cho 1997). Unlike in other countries, private schools in the ROK were asked to open their doors to any student, regardless of their founders’ will, because they were recognized as indispensable institutions central to the development of education. In private school operations, public service and autonomy have been accorded equal weight, making private schools more like public schools.

Further, with the implementation of the two policies—abolishing middle-school entrance examinations in 1969 and the high school leveling policy in 1974—the quantitative expansion of secondary education was accomplished successfully with aid from the private sector. In both lower and upper secondary education, private schools played critical roles in meeting demand from all students who sought higher education. During the period, the government tried to narrow disparities between public and private schools so that every student had access to high-quality education, using various regulations on school governance, curricula, and student admission, as well as subsidies, which spurred discussion about private schools’ public contributions and their autonomy.

B. Public Funding History

Start of Public Funding for Private Institutes

After the foundation of the ROK in 1948, the government’s educational priority was to provide universal, mandatory elementary education in order to eradicate illiteracy. To this end, it implemented a 6-year plan from 1954 to 1959, when about 70% of the Ministry of Education (MOE) budget was invested in accomplishing compulsory elementary education (Paik 2013a). That percentage rose to 81.9% in the last year of the 6-year plan (Table 3.8).

Table 3.8: Compulsory Education in the Ministry of Education Budget

Year

Ministry of Education Budget (W ‘000)

Budget for Compulsory Education (W ‘000)

Share for Compulsary Education (%)

1948

1,746.0

1,211.4

73.2

1950

13,822.2

10,230.6

70.6

1955

2,633,304.1

1,959,173.2

77.0

1959

5,986,396.9

4,813,979.3

81.9

Source: Paik (2013a).

During the 6-year plan, the government relied heavily on private schools to meet the demand for secondary education. Consequently, private schools still have a strong presence in the ROK.

As compulsory primary education was achieved in the 1960s and 1970s, the government shifted its policy priority to expanding secondary education. The quantitative expansion in private secondary education increased the need to improve the quality of education provided by private schools. To this end, the government began to make private schools more like public schools through a private school law enacted in 1963, which began financial support for private middle schools in 1971 and private high schools in 1979.

Policy Development

From 1948 to 1960

With the policy initiative for universal elementary education in the 1950s, private schools played more important roles in providing secondary education. The share of private middle-school students increased from 33.7% in 1952 to 37.5% in 1956, and that of private high school students from 20.3% to 36.1%. These substantial increases enabled the government to focus most of its education budget on accomplishing compulsory elementary education.

Financial support for private schools in the 1950s consisted primarily of the government exempting from tax the properties owned by school foundations, while allowing private school foundations to collect fees and donations from parents through parent–teacher associations. These associations covered some 80% of private middle and high school finances during the period (Council of Principals of Korean Private Secondary Schools 1974).

As private schools made up for a lack of public education budget for secondary schools, the government neither intervened nor controlled them, guaranteeing their autonomy during this period.

Meanwhile, land reform in 1949 that allocated farmland to the tiller also contributed to private secondary school expansion through higher enrollment of farm children, whose parents could now afford to send them to school. Further, the land reform excepted the lands used by educational institutions or for research, allowing land sale and donation only for these purposes (Paik 2013b). This provided incentive for landowners to establish and operate private schools and foundations.

From 1961 to 1980

With the policy initiative to expand middle and high school education in the 1960s and 1970s, private schools played more significant roles in meeting rapidly increasing demand for secondary education. The percentage of private middle-school students increased from 40.8% in 1962 to 48.6% in 1970. With universal primary education achieved in the 1960s, the government began to shift the education budget toward universal lower secondary education, lowering the percentage of private middle-school students in the 1970s.

The percentage of private high school students increased from 42.9% in 1963 to 58.7% in 1979—the number of students in private high schools thus exceeding that of public high schools. This allowed the government to prioritize with its limited education budget expanding public middle schools.

Financial support for private schools was recognized not only as necessary to ensure equal educational opportunity between public and private schools but as justification for government intervention in private schools. With rapid private school expansion, any private school financial difficulties became serious public problems, prompting the government to start providing financial aid to private middle schools in 1971. From 1971 to 1973, the cost of aligning tuition fees in public and private middle schools was supported as an operating expense, and from 1974 to 1976, the cost of aligning teacher salaries and tuition fees in public and private schools was supported as labor and operating expenses (Song 2015). Since 1977, the government has provided financial support to private middle schools through “private school financial deficiency subsidies,” a lump sum based on the estimated difference between private schools’ revenue from tuition fees, transfers from school foundations, and other sources and their total expenses for labor and other school operating costs. In 1979, the government extended this support to private high schools. Further, it increased scholarships and tuition waivers for secondary students in both public and private schools.

From 1981 to 1992

Universal lower secondary education was achieved in the 1980s (Kim and Cho 1997). The government nevertheless continued to invest in upper secondary education to improve its quality while recognizing the public goods received from private schools and ensuring their autonomy. The government also expanded financial support for quality improvement in private school education in the 1980s.

With the policy to accomplish compulsory middle-school education in the 1980s, the percentage of private middle-school students declined rapidly, reversing the trend in the 1970s. The percentage of private middle-school students decreased from 38.8% in 1980 to 28.6% in 1990. Meanwhile, the percentage of private high school students increased from 59.4% in 1980 to 61.7% in 1990. Continued and even greater reliance on private high schools reflected the policy priority to invest education budget to ensure compulsory middle-school education.

The government continued to strengthen financial support for private schools. Since 1984, the government has subsidized facility improvement and, since 1990, has provided further financial aid to improve classroom conditions in private middle and high schools. In addition to subsidies for facility improvement, since the 1990s, national policy project expenses and target project expenses have been provided to support private middle and high schools.

The government continued to reduce middle-school fees by providing compensation to schools. Meanwhile, it expanded financial support to private high schools to be on a par with its support for public high schools, especially for schools that complied with the high school leveling policy (Kim and Cho 1997). As a result, private school admission rates and tuition fees had been aligned with those of public schools. In the 1990s, most private schools received financial support from the government (Song 2015).

From 1993 to present

With the new ROK administration in 1993, education systems had reached a turning point. The Education Reform Committee, under the direct control of the president, announced a new education system, establishing in 1995 open education whereby anyone can receive education on demand, thus creating an “Edutopia” toward citizen self-realization. To achieve its goals, the government attempted to leave behind quantitative expansion that focused on educational providers in favor of educational programs for parents and students.

The role and function of private schools had thus changed. Following private schools’ successful contribution to quantitative expansion, under Edutopia, private schools pursued quality improvement. To this end, the government strengthened private school autonomy while seeking to maintain a balance with the public interest by having private schools as part of the public education system.

The number of public and private middle-school students has been decreasing since the 1990s, as has the percentage of private middle-school. The percentage of students enrolled in private middle schools fell significantly from 24.0% in 1995 to 16.5% in 2020.

In 2005, the number of students enrolled in public high schools surpassed the number of students enrolled in private high schools. However, in 2020, the percentage of private high school students still exceeded 40%, indicating the continuing significant role of private high schools.

The government stipulates several regulations to ensure that education quality in private schools is equal to that of public schools and to ensure a balance between private school autonomy and the public interest.

Tuition fees in private secondary schools are set to match those of public schools. Because private secondary schools are not allowed to implement their own admission policies or raise tuition fees over those of public schools, the government subsidizes teacher salaries and school operating expenditure at the same level as those in public schools. Educational budgets to improve classroom conditions in private schools have also continued since the 1990s. Also, with compulsory middle-school education achieved in 2002, every private middle school in the ROK receives a subsidy from the government equal to those provided to public middle schools.

As additional financial support for private schools, all direct private school operation costs are exempt from corporate tax, value-added tax, property tax, and other national and local taxes. Other businesses and assets owned by school foundations are subject to tax but at lower rates. Donations from private citizens or organizations to private schools are deducted from donors’ taxable income.

C. Public–Private Partnership Frameworks

Support

To encourage the establishment and operation of private schools and ensure a stable supply of educational services, the government provides various incentives, notably tax reduction and financial subsidies. The Government of the ROK provides tax incentives and subsidies for school operation expenses, including teacher remuneration. The government has also enacted laws and provided funds for special institutions to support private education.

Subsidy Policy and Incentives for the Establishment of Private Schools

Incentives such as tax reduction and financial subsidies have been provided to promote the establishment of private schools in the ROK. Exempt taxes include property tax, corporate tax, value-added tax, and other national and local taxes on assets and income directly related to the operation of private schools. Also, school corporations pay lower tax rates on other businesses or assets.

Since the 1970s, as secondary education expanded, financial subsidies have been provided to private schools to narrow the educational infrastructure gap between public and private schools.

The government supports private school teacher labor costs and other school operating expenses. The size of the subsidy is determined by the difference between standard labor and other operating costs, and income such as from entrance and tuition fees. Thus, to ensure that the quality of education in private schools is comparable with that in public schools, and to balance private school autonomy and the public interest, the government subsidizes almost all private secondary schools in the ROK.

Special Institutions to Support Private Education

To improve the welfare of private school teachers and other personnel, the Private School Teachers Pension Law was enacted in 1973, and the Pension for Korean Private School Teachers and Personnel was established in 1974. To raise a pension fund for private school teachers and other personnel, the government paid in the 1970s an amount equal to 3.0% of teachers’ salaries to pension fund, while private school teachers contributed 5.5% of their salaries and school foundations 2.5% (Paik 2013a). In recent years, payments to the fund have been 3.7% for the government, 5.3% for the school foundation, and 9.0% for individual teachers.

To promote private schools and improve their educational environment, the Korea Advancing Schools Foundation was established in 1989, followed by the enactment of the Korea Foundation for the Promotion of Private School Act in the same year. The primary functions of the foundation are to raise and manage funds for private schools, provide financial support for school facility improvement, and manage the property entrusted by private school foundations. The foundation received 85.4% of its funding from the government in 1994.

Supervision and Accountability Policy

During the 1950s, private schools operated autonomously, without significant regulation. With the expansion of private secondary education in the 1960s, the government began to recognize the need to ensure that private schools are serving the public. It enacted in 1963 the Private School Law (PSL) to strengthen its authority to supervise private schools based on the public interest while preserving reasonable autonomy. The law regulated the entities establishing private schools, their property and accounting, and other matters, including qualifications for private school teachers (Republic of Korea, Ministry of Education 1992).

Governance by Public Officials

Article 3 of the PSL states that private secondary schools can be established and operated in the ROK only by “school foundations” and “private school managers.” A school foundation is defined as a corporation organized under the PSL only to establish and operate private schools, and a private school manager is a corporation other than a public organization or individual that establishes and operates private schools under the law. Because private schools are established and operated by school foundations or private school managers, their autonomy is to be respected. However, the government has enacted relatively strong regulations governing private schools as they are considered indispensable institutions within the national education system.

Private schools in the ROK are thus subject to direction and control by the superintendent of education in their school district. Article 10 states that anyone who intends to establish a school foundation must contribute property, formulate articles of association, and obtain permission from the MOE, and Article 20 stipulates that the designation of private school executive officers must be approved by the superintendent. According to Article 28, when a school foundation intends to sell, donate, or exchange basic property; use it for another purpose; offer it as credit security; or bear any obligation or waive any rights, it must obtain permission from the superintendent. Article 31 stipulates that school foundations report their budget and results every year. The intent of the PSL is to ensure that only competent and sound school foundations establish and operate private schools.

Governance by Private School Institutions

Article 14 of the PSL requires every school foundation to have as executive officers at least seven directors and at least two auditors. Article 15 stipulates that a school foundation has a board of directors. Article 16 requires that the board of directors deliberate and decide on budgets, account settlements, loans, acquisitions, and the disposal and management of foundation assets; any modification to the articles of association; any merger and dissolution of the school foundation; the appointment and dismissal of executive officers; the appointment of the principal and teachers in a private school established by the foundation; other important management matters; profit-making businesses; and other matters under the jurisdiction of the board of directors pursuant to statutes, regulations, or articles of association.

Penalty

Chapter 6 of the PSL stipulates penalties for private schools. If a school foundation disposes of its property without authorization; fails to keep separate accounts for school operation and other corporation business; or refuses an order from a competent agency regarding inappropriate profit-making businesses, report submission, or documentation audit, the chair of the foundation board of directors or a private school manager shall be punished by imprisonment with labor of not more than 2 years or a fine not exceeding W20 million.

Article 74 states that the persons authorized to appoint private school teachers shall be subject to an administrative fine not exceeding W10 million if they fail to comply with the request of the competent agency for dismissal or disciplinary action without adequate reason. Further, the chief director, auditor, or liquidator of a school foundation, or the private school manager, shall be subject to an administrative fine not exceeding W5 million if they fail to register the private school, keep a property inventory as prescribed by law, make a false or omissive public announcement, or are negligent in reporting or file false reports.

Financial Transparency

Article 28 states that, to protect private school property, the foundation should obtain permission from the competent agency if it intends to sell, donate, or exchange property; use it for other purpose; offer it as security; or bear any obligation or waive any rights. Article 29 adds that a school foundation should keep accounts on its school separately from accounts on other corporation business, to ensure that tuition fees are used only for educational purposes.

D. Effectiveness

Has Public–Private Partnership Made Access More Equitable?

The contribution of private school policy to expanded access and school equalization regarding vulnerable populations is considered here. The 1980s saw secondary education becoming universal and constantly meeting educational standards. In the new millennium, attention has turned to ensuring access for the underprivileged.

Private schools emerged from a tradition of patriotic movements against Japan’s colonial rule; the movements were led by Christian missionaries and national leaders who had established many private schools. However, private schools were subject to oppression and regulation by the Japanese authorities, sharply reducing their number. When the land reform took place after the founding of the ROK in 1948, the government encouraged the establishment of private schools by excluding from taxation farmland that was donated to establish schools, which was otherwise subject to expropriation.

An unusually liberal laissez-faire policy toward private schools was implemented in the 1950s. In the 1960s through the 1980s, the government adopted a policy of supervision to improve enrollment rates and equalize quality across schools. With policies having effectively expanded access and equalized classroom conditions, the government set out to qualitatively diversify educational opportunity through governance or autonomy-oriented policy under the Education Reform Committee and the Edutopia strategy announced in 1995.

A turning point for private schools came when the government introduced an open policy for secondary education without a middle-school entrance examination, and further efforts to expand and standardize high school enrollment. The policy to equalize high school education conditions saw students being assigned to high schools at random and the government offering financial support to private schools.

The trend in the establishment of new private schools has shifted from middle to high schools. After increasing during the period of quantitative expansion, private middle schools declined during the period of qualitative improvement. Private schools are located mainly in large cities, where they maintain better classroom conditions than in public schools. In rural areas, by contrast, classroom conditions in private schools are worse than in public schools. Conditions in public schools are constant between urban and rural areas, but not so for private schools.

The 1980s saw secondary education universalized. The number of secondary schools started to increase in the 1960s, eventually reaching the largest number of middle-school students in 1985. The number of private middle schools subsequently decreased. The number of high school students reached its peak in 1989, but the number of high schools has continued to increase steadily, as has the number of private high schools.

The number of private middle schools started to decline after its increase during the period of quantitative expansion. As the government established public schools with the objective of instituting compulsory middle-school education, small private middle schools found it difficult to recruit students (Tables 3.2, 3.3, 3.4, and 3.5). The number of private middle schools thus declined, especially in rural areas, where they were less competitive than public schools.

After the government started to implement its high school equalization policy and financial support to private high schools, they became more competitive with public high schools in terms of recruiting students, as indicated by the percentage of private high schools being lower than the percentage of private high school students. This indicates that private high schools no longer had difficulty recruiting students, unlike private middle schools.

Quality, Learning, and Diversity

By opening up and equalizing opportunity for elementary and secondary education, ROK education officials focused on improving qualitative conditions, as indicated by classroom conditions, academic achievement, and diversity in educational programa.

Classroom Conditions

The number of students per class and per teacher, and the number of teachers per class, are indicators of school education quality. In the ROK, quantitative expansion in the 1960s and 1970s saw these indicators worsen as classroom conditions deteriorated. However, during the period of qualitative improvement in the 1980s, classroom conditions improved significantly (Tables 3.23.7).

To enable expanded enrollment, the maximum number of students permitted in a class was temporarily raised in the 1960s and 1970s. To better manage classroom conditions, a supervision policy, particularly for private schools receiving government subsidies, was implemented to control the number of teachers per class—a measure of accountability in private schools. This indicator has been maintained at 1.5–2.0 teachers per classroom in middle schools and 1.8–2.2 in high schools.

Academic Achievement

The Programme for International Student Assessment (PISA) 2018 of the OECD provides internationally comparable data on academic achievement. PISA 2018 data on reading and math showed ROK students achieving very high average scores with relatively little variance between schools (Lee et al. 2012).

PISA 2018 distinguishes between private schools independent of the government and those dependent on it. Independent private schools are primarily funded through student fees or other private contributions, such as from benefactors, while government-dependent private schools are privately managed but receive more than half of their funding from governments (OECD 2020). In the ROK, the average scores of private school students were better than those of public schools’ students, regardless of private school type (Figure 3.3). Students from government-independent private schools outperformed those from public schools and those from government-dependent private schools. Considering that only 34,813 students, or 2.6% of all high school students, were enrolled in government-independent private high schools, the sample may be too small to conclude that government-independent private schools are more effective than other high schools.

Table 3.9: PISA Scores and Ratio of Variance between Schools

image

PISA = Programme for International Student Assessment.

Source: Author based on data from OECD (2020).

School Program Diversity

The ROK has implemented a supervision policy toward private schools: paying subsidies, requiring private schools to introduce admission to middle schools without examinations, and aiming for a higher quality of education in high schools. The supervision policy has effectively managed the standardization needed to improve qualitative conditions and narrow gaps in classroom conditions. The number of teachers per class has been stable. However, governance-or autonomy-oriented policy toward private schools would be better at improving academic achievement in secondary education and creating more diverse educational programs. Such policy has not been widely applied (Paik 2013b).

For private schools to play important roles in innovation, diversity, and efficiency, they must be competitive with public schools and worthy of parental choice in the market. The long-term development of private schools must recognize autonomy in private school management, including their tuition rates. To this end, governance- and autonomy-oriented policies toward private schools are considered better suited over the long term.

Private School Policy and Accountability

The government’s policy toward private schools is expected to make them more accountable. Accountability systems in private schools are consequently influenced by and are subordinate to government policy. When financial support for private schools began in the ROK, government control over private schools was strengthened, inducing bureaucratic accountability. Efforts should be made in developing corresponding accountability in private schools to implement development tasks using financial support for private schools.

The accountability of private schools in secondary education in the ROK has had several characteristics:

(i)With student assignment by lottery under the leveling policy, the market accountability of private school was limited. Metropolitan and provincial offices of education did not become as accountable to citizens, parents, local communities, and civic groups as expected with the establishment of local autonomy because residents and parents lacked interest in education projects.

(ii)Under bureaucratic accountability, power was not devolved sufficiently to citizens, parents, and private schools, who were the main actors cooperating with private schools. Private school market and managerial accountability was not strengthened, while bureaucratic accountability to government demands became the leading responsibility of private schools.

(iii)Market accountability, managerial accountability, and bureaucratic accountability needed to work cooperatively as checks and balances in the three groups responsible for the governance of private schools: the government, parents in local communities, and private schools. To govern the operations of a cooperative private school, checks and balances were required between them. It was difficult to achieve the results hoped for in pursuit of quality improvement and diversity in private schools during the period of qualitative improvement because managerial accountability in the government was low and market accountability in private schools was limited.

(iv)For private schools to be autonomous, they needed to operate responsibly. Special efforts were needed to develop private schools’ social accountability, teacher’s professional accountability, and network accountability. School management committees have been formed to deal with the internal matters, and more autonomy has been granted to teachers to exercise their professional expertise, but these reforms remain in a formative stage.

Policy Effectiveness

How effectively private school policy influences private schools is determined by the (i) goals and tasks of private school policies, (ii) method and amounts of financial support, (iii) degree of autonomy granted to private schools, and (iv) suitability of private school responsibilities.

Concerns have been expressed over the outcomes of private school policy in terms of access and equity, quality, governance and accountability, innovation and diversity, and the effectiveness of private school policies. The impacts of private school policy are reviewed here in connection with the accountability system of private schools. Private school policy that has been effective as expected is indicated with two plus symbols (Table 3.10).

Table 3.10: Impacts of Private School Policy on Policy Goals for the Education Sector

image

+ = less strong, ++ = strong, – = weak.

Source: Author.

PK S0Xx8mmops/xhtml/ch04.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

IV PRIVATE SCHOOL POLICIES IN JAPAN

A. Status

Enrollment Trends since 1960 and Budget Expansion for Private Schools

The high school enrollment rate in Japan has been rising since the early 1960s and exceeded 90% in the late 1970s (Figure 4.1). This increase has diversified the high school student population and encouraged the establishment of many specialized high schools, such as technical and commercial high schools. With high school enrollment universal, the college enrollment rate started rising steadily in the 1990s and now exceeds 50%.

The number of students in private middle schools peaked in the early 1960s following a postwar baby boom (Figure 4.2). The number subsequently declined, but since the 1980s, both the number of students attending private middle schools and the percentage of students in private middle schools have increased. Similarly, the numbers of private middle schools and teachers have also increased.

Since the 1960s, the percentage of private high school students has hovered within a couple percentage points of 30% and, since 2012, it has been consistently above 30% (Figure 4.3). Thus, the ratio of public to private students has remained constant, indicating that private high schools continue to accommodate a certain percentage of students, even as the birth rate declines.

Private Sector Contribution to Enrollment and Quality Improvement

During the student surge of the 1960s, private high schools played important roles in high school education. Simultaneously, a rapid increase in the high school enrollment rate and rise in the number of students trying to enter high school created a need for a substantial increase in capacity. Many prefectures turned to private schools to accommodate them, which prompted the national government to provide subsidies to private schools to help them cope with the rapid increase in students. As a result, many new private high schools were established, and existing high schools increased their capacity, reducing the number of students denied access to high school education. The ratio of public to private students established at this time has been maintained to the present day.

B. Public and Funding History

Japan’s private education policy has been explained on two axes: support and control (Ogata 1978). Ichikawa (2006) described Japan’s private education policy up to the 2000s as follows.

While private education in the prewar years was highly controlled, control in the postwar period was significantly loosened with the School Education Law and the Private School Law (PSL). The School Education Law reduced the authority of the supervisory agency and allowed private schools to operate independently by changing earlier requirements for approval to a notification system. The PSL further limited the authority of the competent authorities under the School Education Law. It abolished most of the notification system and obligated the competent authorities to consult the Council for Private Schools before the establishment or abolition of schools requiring approval. More than 75% of the members of the Council for Private Schools are involved in private education. To give publicity to private schools, in principle, school corporations must establish schools.

To receive funding from the government, however, private schools must be under public control. The minimum controls were stipulated as reporting on the status of operations and accounting, recommending budget changes, and recommending the resignation of board members. Because more financial subsidies in Japan meant more control, outright subsidies were restrained at first, and national government contributions to private school subsidies were mainly in the form of loans. However, the MOE saw this situation as a problem. In its 1955 report to the Central Council for Education, On the Promotion of Private School Education, it pointed out that there were examples of private schools whose public nature was not guaranteed and stated the need for control through financial support. Ichikawa (2006) describes the private school policy of this period as close to laissez-faire.

In the 1950s, private education policy toward private universities began to change. The percentage of loans for universities decreased and the rate of subsidies increased. Still, for high schools, support was the responsibility of the prefectural governments, and the MOE offered little support and had little control except for regulations based on the PSL. Reference to high school education was made in the 1967 report of the Provisional Committee on Private School Promotion Policy, which recommended correcting disparity between public and private schools.

Ordinary fee subsidies for private universities began in 1970, and subsidies for private high school began in 1975 under the Private School Promotion and Subsidy Law. This was the first time that the government provided financial support to high schools, which had strengthened government control over private school management.

The powers of the competent authorities increased, including reporting on the status of operations and accounting, ordering the correction of excess enrollment, and recommending changes to inappropriate budgets. Since then, private education subsidies by prefectural and national governments have been on the rise. While the total amount has increased, the details have changed—since the 1990s, special subsidies have accounted for an increasing share of government subsidies. Moreover, the percentage of special subsidies among all government subsidies has increased. Special subsidies are granted to private schools if they implement measures in line with the policies of the Ministry of Education, Culture, Sports, Science and Technology (MEXT), which arguably means a gradual strengthening of national government control.

Start of Public Funding of Private Institutes

Subsidies for private schools were initially provided by prefectural governments, which were the competent authorities. The system of subsidies to schools varied significantly from prefecture to prefecture but nowhere included private schools. Only in the 1960s, during the rapid growth in the number of students, did the government begin to provide continuous subsidies to private schools. Not only did the postwar baby boom bring a rapid increase in the 15-year-old population, the percentage of students going to high school also increased, creating a need for more high schools. This prompted the national government to increase the private school budget for prefectures. To accommodate the increasing number of students in schools, prefectures provided subsidies to private schools in order to expand school buildings and construct new schools. This increase in the subsidy system for private schools established the current subsidy system.

Policy Development

Figure 4.4 shows a change in ordinary cost subsidies from the national government, categorized as general subsidy and special subsidy. Konyuba (2019) explains the development of financial support policy for private schools as follow

From 1960 to 1970

Financial support for private schools, called private school subsidy, was delivered by prefectures. At the beginning of this system, subsidies were financed mainly by prefectures, not the central government. Differences in prefectures’ financial circumstances caused significant gaps in the amount of private school subsidies between prefectures. To narrow the gaps, the central government decided to create a new financial resource for prefectures.

In 1970, private school subsidies were subjected to a formula for calculating tax allocation grants. This new formula had narrowed the gaps in prefectures.

In 1975, the Act on Subsidies for Private Schools was promulgated. The national government had started granting specific subsidies to prefectures, for them to pass on those subsidies to private schools. Prefectures’ current subsidies for private schools are financed by government subsidies and local allocation tax subsidies. Subsidies from the central government have been provided only to prefectures that granted subsidies to private schools. Since 1975, national government financial resources for prefectures giving the subsidies to private schools have consisted of national subsidies and local allocation taxes (Figure 4.5).

The types of private school subsidies were as follows. The first were ordinary cost subsidies, which were divided into general subsidies and special subsidies. General subsidies were for recurring expenses such as personnel costs for teachers and consumables necessary for school operation. Special subsidies were given to schools that implemented items specified by the MEXT, such as small-group classes and active learning. The second type of subsidy was for facilities and equipment. It covered a portion of the cost of renovating and updating facilities. The amount of ordinary cost subsidy from the government fluctuated according to the amount of subsidy from the prefecture.

From 1975 to 1979, a rank system was adopted. The subsidy amount from the national government varied according to rank—A, B, and C—based on the standard amount set by the national government. If the amount of prefectural subsidy was more than the standard amount, it was ranked A. If it was more than 85% of the standard amount, it was ranked B. If it was more than 75%, it was ranked C. If the subsidy from the prefecture was lower than rank C, the national government would not give subsidies to the prefecture. This system was intended to encourage prefectures to set subsidies according to the national standard.

From 1980s to 2000s

After 1980, the rank system was changed to a limit system, with set minimum and maximum limits. The government did not provide subsidies to prefectures whose subsidies fell below the minimum limit. If a prefecture provided subsidies that exceeded the maximum limit, the national government would not provide subsidies. The minimum limit was abolished in 1993, presumably because all prefectures were subsidizing above it.

The subsidy amount rose from the 1970s but dropped sharply in 1994 because financial difficulties forced the government to reduce subsidies and cut other expenditure. After 1995, subsidies increased again and plateaued in 2003. The ratio of general subsidies to special subsidies changed, with the percentage of special subsidies increasing since 2000.

C. Public–Private Partnership Frameworks

Support

Incentive for Establishing a Subsidy Policy

There are three main ways the prefecture prepares budgets for subsidies to private schools (Konyuba 2019). The first is by unit price, with the subsidy amount determined per student and multiplied by the number of students. This formula is simple but causes subsidies to decrease along with the number of students.

The second method considers eligible expenses. The prefectural government decides which of the school’s recurrent expenses are to be subsidized and funds part of the expense. Because the calculation is based on the school’s settlement of accounts, a decrease in the number of students does not immediately reduce the budget. A disadvantage is more complicated administration.

The third is standard operating cost. The prefecture sets the standard operating cost for private schools based on the public school’s settlement of accounts for the previous year and subsidizes a portion of it. As such, the subsidy is unlikely to be affected by a decrease in the number of private school students, but external factors may cause it to decrease.

Four main methods are used to allocate the accumulated budget to each private school. Because the actual situation differs from prefecture to prefecture, the details of the same method may vary. The first method is district allocation. Before calculation, detailed categories are determined by the number of students, teachers, and other factors. The second method considers eligible expenses, with subsidies based on the private school’s financial results from the previous year. The third method is by unit price. Unlike when preparing the budget, allocation by unit price is based on the number of students but adjusted by taking into account personnel costs and other factors. The fourth method uses standard operating cost. As in budget preparation, the subsidy is calculated based on the operating expenses of public schools in the distric

Special Institutions to Support Private Education

Governments have to honor the spirit under which private schools are founded and avoid making policy decisions that unduly affect private schools and could constrain their freedom. Prefectural governments consult with private schools through the provincial Council of Private Schools.

Supervision and Accountability Policy

Governance by Public Officials

As private schools operate on private property, both land and buildings, the government must respect school culture and educational philosophy in the spirit of the school founder. While the autonomy of a private school is respected, the government enacts restrictions because the school is an adjunct to public education. Private schools can be established only by school corporations, a special institution for establishing private schools.

The prefectural governor is the competent authority for private primary and secondary educational institutions. Regarding the autonomy of private schools, the control of the competent authority is limited, and the prefectural Council of Private Schools must be consulted when deciding on a policy toward private schools. The power of the competent authority is defined by the School Education Law, the PSL, and the Private School Promotion and Subsidization Law. Article 4 (paras. 1 and 2) of the School Education Law provides the authority to approve the establishment and abolition of schools, and Article 13 authorizes an order to close schools. The PSL mainly stipulates government authority over school corporations: Article 52 on approval of the articles of endowments at school corporation establishment; Article 60 on orders to suspend profitable businesses and administrative orders and recommendations for the dismissal of officers; and Article 62 (para. 1) on orders for dissolution. Under Article 12, authority over school corporations is tied to private school subsidies: (i) the authority to collect reports, pose questions, and inspect schools; (ii) the authority to order the correction of excess enrollment; (iii) recommendations to change the budget; and (iv) recommendations to dismiss office

Governance by Private School Institutions

With revision of the PSL in 2004, Article 36 stipulates the establishment of a board of directors by a school corporation as its decision-making body. Previously, the articles of endowment stipulated only the establishment of a board of directors without legal provisions. The board of directors became the school corporation’s decision-making body and the supervisor of the directors.

According to Article 35 (para. 1) of the PSL, school corporations must have five or more directors and two or more auditors. As no upper limit is stipulated, each school corporation determines the number of directors and auditors in its articles of the endowment. Article 38 (para. 1) specifies those eligible to be director as follows: (i) the principal of the school established by the school corporation, (ii) councilors, and (iii) academic experts. In addition, Article 38 (para. 5) obligates the appointment of external directors who are neither officers nor employees of the school corporation. Paragraph 7 states that no more than one spouse or relative within a third degree of kinship of the director may be included. The purpose is to incorporate diverse opinions into the school corporation’s management and enhance its public nature by precluding management by one family.

Several auditors audit school corporation operations and financial status, as stipulated by Article 35 (para. 1) of the PSL. If the auditors discover any misconduct or severe violation of the endowment, they must report it to the competent authorities, the board of directors, and the board of trustees.

A board of trustees is a mandatory collegial advisory body stipulated in Article 41 of the PSL. The number of trustees is set to be more than twice the number of directors. It has the role of judging whether board of directors’ decisions regarding corporate business are appropriate. Article 42 (para. 1) of the PSL stipulates that, for such matters as the budget and business plan, the president must seek the trustees’ opinions. However, as the board of trustees is an advisory body, the board of directors is not bound by trustee opinions (Ono 2020).

Penalties

Article 66 of the PSL stipulates penalties for (i) failure to register, (ii) failure to adhere to the articles of endowment, (iii) refusal to allow inspection of the articles of endowment, (iv) failure to keep an inventory of property or misrepresenting it, (v) false notification of the articles of endowment, (vi) refusal to allow inspection of the inventory of property, (vii) failure to commence bankruptcy proceedings, (viii) violation of an order to suspend business for profit, and (ix) false reporting or refusal to report or allow inspection. Any of these violations can bring a nonpenal fine of up to ¥200,000.

Article 29 of the Act on the Appropriation of Subsidies applies if government subsidies are improperly delivered, with a penalty of imprisonment of not more than 5 years or a fine of not more than ¥1 million.

No penal provisions exist in the PSL for special breach of trust or bribery by board members, but the need for such provisions has recently been discussed.

Financial Transparency

Amendment to the PSL in 2004 mandated that school corporations disclose financial information. The documents to be revealed are the (i) articles of endowment, (ii) inventory of property, (iii) balance sheet, (iv) income and expenditure statement, (v) business report, (vi) list of directors, (vii) audit report, and (viii) criteria for directors’ remuneration.

According to Article 63-2 of the PSL, school corporations that establish universities must disclose this information. Other school corporations are required to disclose the information online.

Amendment to the PSL in 2019 mandated that school corporations that establish universities may show all these documents to disinterested parties, but a school corporation that established only high schools can disclose to disinterested parties only the articles of endowment and the list of directors. Disclosure of the other documents is limited to interested parties, defined as students enrolled in schools established by the school corporation, their parents or guardians, contracted employees of the school corporation, and creditors to the school corporation. There must be a legal relationship of rights and obligations between the school corporation and the interested parties. For this reason, neighbors of the school are not included (Matsuzaka 2020).

D. Effectiveness

Has Public–Private Partnership Made Access More Equitable?

With the Free High School Tuition Law, 2010, public high schools offer free tuition up to an income limit. However, for private high schools, an amount equal to or up to twice the public high school tuition is provided under schooling support money, depending on household income. Following a 2014 amendment to the law, only households with annual income below ¥9.1 million are eligible for schooling support money, and families with annual income below ¥2.5 million receive 2.5 times the amount of public high school tuition.

In 2020, the amount of schooling support money was increased for households with annual income of less than ¥5.9 million to make private high school tuition practically free.The national government provides a yearly amount of ¥396,000, and the average tuition fee for private high schools in 2018 was ¥399,000. This increases the opportunity for low- to middle-income families to place their children in private high schools.

The schooling support money is from the national government. In prefectures where private high school tuition is high, the government provides tuition subsidies on top of those provided by the government. The Tokyo metropolitan government, for example, provides ¥467,000 of schooling support money from the national government and the Tokyo metropolitan government for households with annual income below ¥9.1 million.

Most prefectures, by contrast, subsidize only tuition fees and do not cover entrance fees or facility maintenance fees.

Improved Quality of Education

The national government implemented, in 2007, amendments to the law on the Organization and Operation of Local Education Administration. The amendments allowed prefectural boards of education to offer professional guidance, advice, and assistance regarding school education while respecting the autonomy of private schools.

The quality of education may be measured by higher education enrollment rates. From the beginning, the private high school enrollment rate was higher than that for public schools (Figure 4.6). The gap widened after the 1990s, with private high school enrollment exceeding 50% in 1999 and peaking at 61.7% in 2007.

Private high schools send many students to top universities. Among the top 50 high schools sending students to the University of Tokyo in 2021, 27 were private, 22 were public, and 3 were national. Most of the private high schools in the list are located in urban areas such as Tokyo.

Finance, Innovation, and Efficiency Compared with Public Schools

Article 26 of the PSL permits school corporations’ profit-making businesses to allocate profits to private school management. However, as there should not be an impediment to private school education, the use of school facilities in ways that may impede school education is not allowed. The types of profit-making businesses are determined by a public notice issued by the MEXT and are revised periodically.

Article 15 of the Law for the Promotion of Private Schools stipulates tax incentives for private schools and school corporations. Since private schools serve the public interest, many are exempt from corporate tax, gift and inheritance tax, business tax, prefectural and municipal inhabitant tax, real estate acquisition tax, fixed asset tax, and income tax, among others. Only income from profit-making businesses is subject to taxation, but the tax rate is reduced to 19% for school corporations from 23.2% for profit-making corporations in general. For example, academic teaching, which is generally treated as a profit-making business, is considered nonprofit for school corporations.

Donations to school corporations receive preferential treatment. When an individual donates to a school corporation, the donor can receive an income tax deduction or tax credit. When a corporation donates, the entire donation amount can be a deductible expense. These incentives encourage individuals and corporations to donate to schools (Ono 2020).

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V POLICY IMPLICATIONS AND RECOMMENDATIONS

A. Main Conclusions from the Republic of Korea

Policy toward private schools may be divided into four types according to the form of public financial support and regulation: laissez-faire, supervision, governance, and autonomy. A laissez-faire policy in the 1950s was followed by supervision in the 1960s. Policy from 1980 to 2000 was oriented toward governance. From the turn of the millennium, policy toward private schools showed renewed respect for their autonomy and harmonized the public interest with it.

The effectiveness of a policy toward private schools is determined by its goals and tasks and whether private schools have a suitable system of accountability. To encourage the establishment of private schools in the early days, a laissez-faire policy was effective. In the period of quantitative expansion, supervision became a useful policy to increase the enrollment rate and equalize classroom conditions. It is too early to evaluate the governance-oriented policy toward private schools.

Over the long term, the ROK policy toward private schools is oriented toward governance and autonomy. The ROK educational ecosystem needs to be transformed from a vertical hierarchy to a horizontally diversified structure of secondary schools. To this end, it is necessary to study and design private school policies that balance and harmonize autonomy and responsibility. Thus, there is a need to develop a balanced system of accountability for private schools, harmonizing external and internal requirements.

Table 5.1 summarizes the development of PPP in the ROK and indicates how effectively the policy toward private schools has achieved policy goals through PPP.

The development stages of education in the ROK are initial stage, quantitative expansion period, qualitative improvement period, and advanced stage. This experience of government policy and institutional innovation, stage by stage, is presented to ADB DMCs as a reference for their own private school policy development.

Table 5.1: Public–Private Partnership Achievements by Type of Private School Policy

image

Source: Author.

B. Main Conclusions from Japan

The share of private schools in Japanese schooling is higher than in most other countries. For this reason, access to school education is also very high.

Japan’s policy toward private schools has changed several times. Prior to World War 1, education was dominated by public schools, and private schools were closely controlled. After 1880, private schools could be established only with official approval. In the 1910s, control over private schools was further strengthened to improve the quality of private school education.

The PSL was enacted in Japan in 1949, democratizing the administration of private schools, stabilizing school operation by establishing a school corporation system, and laying the foundation for support for private schools (Tawara 1990). The PSL was a revolutionary reform of the Japanese private school system and guaranteed the development of private schools, but the means to prevent corruption in private school management were lost (Government of Japan, Ministry of Education 1972).

However, even after the enactment of the PSL, financial support for private schools was very weak until 1969. The PSL provided tax benefits to school corporations and low-interest loans for facility expenses but did not support ordinary expenses. As a result, the number of private schools experiencing business crises during the late 1960s increased, prompting more financial support for private schools. In the 1970s, the MEXT started subsidizing current expenses for private schools.

Subsidies to private high schools from the national and prefectural governments have generally trended up. This is unusual because subsidies funded by local allocations tend to fall as national and prefectural governments experience financial difficulties. One reason subsidies were protected is that private high schools have continuously accounted for 30% of all high schools since the 1960s. It has become hard to reduce subsidies for private high schools that have historically played a major role.

In tandem with the start of support for private schools’ current expenses, regulation for private schools has been strengthened. The organization in charge of private school policy was expanded, and the government began to elaborate more private school policies. The national government and competent authorities are very interested in the sound management of school corporations and the proper use of subsidies. Regulations on both have become particularly strong in recent years, and systems are designed to ensure that school corporations are managed fairly. As power is concentrated in the hands of board members and other executives, communication between them and faculty members on the front lines may be required.

The current cost subsidy policy is different for high schools and colleges. As Japan’s economic situation began to deteriorate in the 1980s, the cost of applying to private high schools began to decrease. As the number of private schools, especially of private universities, continues to increase, the university tuition fee has decreased. The government currently supports approximately 10% of the current expenses. Meanwhile, subsidies for ordinary high school expenses dropped to a minimum in 1984, recovering thereafter. In some schools, half of operating expenses are subsidized. In high school education, subsidies were provided to curb the increase in tuition paid by students, but in higher education, subsidies were used to improve classroom conditions (Ichikawa 2006).

Since the early 2000s, the PSL has been amended to strengthen transparency in private school operation. Financial support policies for private schools are also changing. Rather than providing uniform support to all private schools, the government is strengthening support for selected private schools. This trend is prominent in the policy toward private universities.

Compared with the ROK, Japan pursues a policy of less control over private schools. No regulation governs the selection of students for private schools in Japan. Government regulations on school curricula are also very weak. Supervision exists to prevent illegality in the operation of private school corporations. Against this background, Japanese private schools are more diverse than those in the ROK, and there are private schools with academic achievement superior to that of public schools.

All schools in Japan are required to organize their classes in line with established courses of study. For public schools, the local board of education, as the supervising agency, provides guidance and advice on school curriculum organization. No comparable authorities guide private schools. While the board of education may observe classes at private schools, it has no jurisdiction over their contents. Private school autonomy regarding course content is largely respected.

Tuition subsidies for private high schools, which began with free tuition for public high schools, have expanded significantly in recent years. Some prefectures also provide private high schools with subsidies coming from the national government. For example, the Tokyo metropolitan government provides an amount close to the average tuition for households with annual income below ¥9.1 million. Admission to public high schools is determined by academic ability, thus even needy students that fail the entrance exam have no other option but to go to a private school. Expansion in the number of households eligible for tuition subsidies allows more students to attend private high schools despite their low income and keeps students from dropping out of school because they cannot pay tuition fees. Further, it offers a wider choice for families.

The competent authorities do not intervene with what is more than necessary regarding the school curriculum. The reason is that there are no teachers on the staff of the competent authority. The board of education has jurisdiction over public schools because there are many people with teaching experience who can guide educational content. Still, no such system exists for private schools. A 2007 revision of the law allows the competent authorities to provide guidance or advice on educational content with the cooperation of the board of education while respecting the autonomy of private schools. The development of unique education in private schools is believed to guarantee the quality of education.

C. Recommendations

The analysis of PPP in the education sector in the ROK and Japan leads to the following recommendations for ADB DMCs:

(i)To increase the enrollment rate in secondary education, prioritize the universalization of primary education and increase middle-school enrollment. Expand the enrollment rates sequentially—from elementary school through college. This can be called a sequential upward expansion strategy for an increased enrollment rate.

(ii)To further increase the enrollment rate, promote an open policy for secondary education. The ROK Constitution stipulates free compulsory elementary education. To alleviate competition in entrance exams, an open policy for middle school was implemented, as well as a high school equalization policy. Consequently, quantitative expansion was achieved first, and qualitative improvement followed. Pursuing quantitative expansion and qualitative improvement at the same time could undermine the achievement of expanded enrollment. The educationally disadvantaged are struggling to achieve their academic goals. This group includes low-income and other vulnerable families, difficulties, and out-of-school youths. Establishing a support system for the educationally disadvantaged is an important feature of equity in education.

(iii)Promote diversity in high school education. Schools have to respond to parents’ expectations to prepare their children for college entrance examinations. However, meeting the parents’ expectations on school education often result in school systems that are more hierarchical than diverse. Universities and colleges are expected to play important roles in supporting high schools in their pursuit of educational ideals such as character and competency development. The Government of the ROK has begun to provide financial support for universities that contribute to the normalization of high school education. University contributions include innovative approaches of selecting students based on school recommendations and pursuing affirmative action programs for the disadvantaged (Lee, Lee, and Jang 2010). In addition, it is necessary to reinforce the autonomy of private schools as they change their selection criteria (Lee, Kim, and Byun 2012).

(iv)When examining the use of private schools in the development of education, recognize that they are important partners of public schools. Respect must be paid to both private school autonomy and the public interest, and private and public schools should be treated equally. Financial support for private schools must come from public resources. Considering the important role played by private schools, promote long-term ideals and the development of the private school system.

(v)Where government policy toward private schools can be divided into four types—laissez-faire, supervised, governance-oriented, and autonomy-oriented—the policy type in force should suit the policy task at that stage. Pilot studies can review the relevance and suitability of the policy type for each country. Subsidies to private schools are quite common in most countries. Voucher systems and their impact on market accountability are not fully understood in most ADB DMCs. The current study suggests that pilot voucher systems be implemented for financial support under a governance-oriented private school policy. It further recommends that private school policies be checked for effectiveness and suitability toward achieving policy goals. Periodic review should examine the sustainability of policy (Afridi 2018).

(vi)The government, parents in local communities, and private schools are the major actors in private school governance. Market, managerial, and bureaucratic accountability need to work together with checks and balances between them to yield collective accountability. It is necessary to prepare checks and balances for external accountability by empowering parents and private schools. In developing internal accountability, it is necessary to support private school autonomy so that social and professional responsibilities can be met.

(vii)Education finance needs to be legislated to secure financial resources. To support elementary and secondary education in the ROK, a certain percentage of the domestic tax is legally provided as educational resources—initially 12.98% and now 20.79%. It is necessary to use PPP for the priorities shown in Quadrant 1 (private service supply and public funding) and Quadrant 3 (public service supply and private funding) of Figure 2.3 to increase the efficiency of financial support for private schools. When the ability of the Government of the ROK to provide financial support was low, it managed to expand educational opportunity through a policy of high tuition and low cost on a pay-for-service basis, though this increased the burden on parents. When financial support capacity had improved, the burden of tuition was lowered (Park 2015).

(viii)In consideration of the long-term development of private schools, it is necessary to review laws and acts for the management and governance of private schools. This study recommends considering the following: (i) the balance between autonomy and public responsibility of private school, (ii) the balance between support and control of private schools, and (iii) the possibility of cultivating private school diversity. Private schools need to be recognized as valuable national assets.

PK {-XKxops/xhtml/contents.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

CONTENTS

Tables, Figures, and Box

iv

Acknowledgments

v

Abbreviations

vi

Executive Summary

vii

I.

Introduction

1

II.

Public–Private Partnership in Education

4

 

A.

Purpose and Rationale

4

 

B.

Forms of Public–Private Partnership

5

 

C.

Private School Policy as Public–Private Partnership

8

 

D.

Advantages and Challenges of Adopting Public–Private Partnership in Education

10

 

E.

Impact of Public–Private Partnership on Education Policy

12

III.

Private School Policy in the Republic of Korea

15

 

A.

Status

15

 

B.

Public Funding History

19

 

C.

Public–Private Partnership Frameworks

23

 

D.

Effectiveness

25

IV.

Private School Policies in Japan

31

 

A.

Status

31

 

B.

Public and Funding History

33

 

C.

Public–Private Partnership Frameworks

37

 

D.

Effectiveness

40

V.

Policy Implications and Recommendations

43

 

A.

Main Conclusions from the Republic of Korea

43

 

B.

Main Conclusions from Japan

44

 

C.

Recommendations

46

References

49

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REFERENCES

Afridi, M. 2018. Equity and Quality in an Education Public–Private Partnership: A Study of the World Bank-Supported PPP in Punjab, Pakistan. Oxfam.

Asian Development Bank. 2017. Innovative Strategies for Accelerated Human Resource Development in South Asia: Public–Private Partnerships for Education and Training: Special Focus on Bangladesh, Nepal, and Sri Lanka. Manila.

Baum, D. et al. 2014. What Matters Most for Engaging the Private Sector in Education: A Framework Paper. SABER Working Paper Series. No. 8. World Bank.

Council of Principals of Korean Private Secondary Schools. 1974. Korean Private Schools.

Government of Japan, Ministry of Education. 1972. The Hundred-Year History of Japan Education.

Hanushek, E. A., and L. Woessmann. 2011. The Economics of International Differences in Educational Achievement. Handbook of the Economics of Education. 3. pp. 89–200. Amsterdam: Elsevier.

Ichikawa, S. 2006. Kyoiku no Shiji-ka to Kokyoiku no Kaitai (The Privatization of Education and the Collapse of the Public Education). Tokyo: Kyoiku Kaihatsu Kenkyujo.

KEDI. Korean Educational Statistics Service.

Kim, J. C. 1989. A Study of Korean Education Policy (translated). Education Publishing Co.

Kim, S. Y., and S. H. Cho. 1997. The Structure and Change of Korean Private Schools. Educational Theory and Practice. 7 (2). pp. 27–42.

Konyuba, H. 2019. Siritsu Gakko Seisaku no Tenkai to Chiho Zaisei (Private School Policy and Local Finance). Tokyo: Yoshida Shoten.

Lee, C. J. 2008. Education in the Republic of Korea: Approaches, Achievement, and Current Challenges. In B. Fredriksen and J. P. Tan, eds. An African Exploration of the East Asian Education Experience. Washington, DC: World Bank.

Lee, C. J., Y. Kim, and S. Byun. 2012. The Rise of Korean Education from the Ashes of the Korean War. Prospects. 42. pp. 303–318.

Lee, C. J., H. S. Lee, and H. M. Jang. 2010. The History of Policy Responses to Shadow Education in South Korea: Implications for the Next Cycle of Policy Responses. Asia Pacific Education Review. 11 (1). pp. 97–108.

Lubienski, C. 2006. School Diversification in Second-Best Education Markets. Education Policy. 20 (2). pp. 323–344.

Matsuzaka, H. 2020. Chikujo Kaisetsu Siritsu Gakko Ho (Article-by-Article Explanation of the Private School Law). Tokyo: Gakko Keiri Kenkyukai.

Ogata, K. 1978. Kyoiku-Keizairon Josetsu: Shiritsu-daigaku no Zaisei (Introduction for the Economics of Education: The Fiscal Policy of the Private Universities).

Ono, M. 2020. Siritsu Gakko Ho Kouza (Private School Law Course). Tokyo: Kasumi Shuppansha.

Organisation for Economic Co-operation and Development (OECD). 2020. PISA 2018 Results (Volume V): Effective Policies, Successful Schools. Paris: OECD Publishing.

Paik, S. J. 2013a. Role of Private Schools in Korea’s Educational Development. Seoul: KDI School of Public Policy and Management.

———. 2013b. 2012 Knowledge Sharing Project of Economic Development: The Roles of Private Schools for Educational Development in Korea (translated). KDI Global Graduate School of Policy.

Park, H. B. 2015. Expansion of School Enrollment: Size and Characteristics since Independence (translated). In S. C. Oh, ed. The 70 Years of Education in the Republic of Korea (translated). History Museum.

Patrinos, H. A. 2010. Private Education Provision and Public Finance: The Netherlands. Washington, DC: World Bank.

———. 2013. Private Education Provision and Public Finance: The Netherlands. Education Economics. 21 (4). pp. 392–414.

Patrinos, H. A., F. B. Barrera-Osorio, and J. Guaqueta. 2009. The Role and Impact of Public–Private Partnerships in Education. Washington, DC: World Bank.

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Song, K. C. 2015. Issues and Tasks on the Support System to Make Up for Financial Deficiency of Private Secondary Schools. Journal of Economics and Finance of Education. 24 (2). pp. 57–85.

Sriram, S. et al. 2014. Partnering for Outcomes: Public–Private Partnership for School Education in Asia. McKinsey Center for Government.

Steer L. et al. 2015. Non-State Actors in Education in Developing Countries: A Framing Paper for Discussion. Paper prepared for Annual Research Symposium, Center for Universal Education in Brookings. Washington, DC. 5–6 March.

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Verger, A., and M. Moschetti. 2016. Public–Private Partnership in Education: Exploring Different Models and Policy Options. Background Paper for the Open Society Foundation. Inter-agency Network for Education in Emergencies. 27–28 June.

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PK |-Xqops/xhtml/summary.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

EXECUTIVE SUMMARY

This publication examines an alternative way to provide education more efficiently and effectively through public–private partnerships (PPPs). PPPs are a mechanism by which governments procure and implement public services using expertise and resources from the private sector. Although PPPs in education are prone to loss of public control and authority, and risk exacerbating segregation, they have the following advantages: risk control and efficient financing, flexibility, and variety in options, revving up reform and enhancing equity for vulnerable groups.

PPP can be examined in terms of government policy toward private schools, not just in the form of contracts or agreements. When using PPP to plan national education policies, it is very useful to regard private schools’ policy as PPP. It can contribute to a clear understanding of the role of private schools and the direction of national education policy. Analytical review can also reveal how educational opportunities and changes in quality, diversity, and accountability reflect government policy toward private schools.

Many Asian countries face two challenges in education: expanding educational opportunity and improving the quality of education. The educational challenges that the Asian Development Bank’s developing member countries (DMCs) must grapple with are far more complex than simply expanding access to education. Since most DMCs have limited national financial resources to invest in education, it is important to maximize educational opportunity with the resources available. In this respect, the experience of the Republic of Korea (ROK) and Japan can be instructive to DMCs. The two countries expanded educational opportunity by developing private schools, initially experiencing serious problems such as impaired educational equity and weak accountability. While PPP in the ROK and Japan has not been perfect, experience from the two cases may be helpful to many DMCs as they seek to expand educational opportunity and improve the quality of education.

In this publication, private school policies are classified into four categories based on two criteria: financial support for private schools and government regulation. The four categories of private school policy as PPP are as follows: laissez-faire, supervisory-regulated, collaborative governance, and autonomy.

ROK private school policies evolved from laissez-faire in the 1950s to supervisory-regulated in the 1960s, then they became collaborative governance in the 1980s–2000s, and now autonomous orientation. From the ROK case, we can learn that the laissez-faire policy was effective in encouraging the establishment of private schools in the early days. As the number of private schools expanded, supervisory-regulated policy became useful in increasing the enrollment rate and equalizing educational conditions. Finally, collaborative governance has been effective and efficient as it has made progress.

In Japan, various subsidies from the national and prefectural governments have helped develop private schools. Private high schools have consistently accounted for 30% of all high schools since the 1960s, and subsidies have been important to private school management. Compared with the ROK, Japan’s private school policy is less controlled. No government regulation determines which students are enrolled in private schools. Government regulation of school curricula is not strong. Supervision exists mainly to prevent illegality in the operation of private school corporations. In general, Japan’s private schools are more diverse than those in the ROK, and some of Japan’s private schools have better academic achievement than the public schools.

Based on experience in these two countries, the authors recommend the following to DMCs:

   Prioritize making primary education universal and increasing middle-school enrollment to increase the enrollment rate in secondary education.

   Promote an open policy for secondary education to further expand the enrollment rate.

   Promote diversity in high school education, balance the autonomy of private schools and their contribution to the public interest, and treat private and public schools equally.

   Provide private schools with financial support using public resources.

   Legislate education finances to secure resources.

   Review private school laws and policies to ensure balance between private school autonomy and the public interest and between support for and control of private school, and to cultivate diversity in private schools. Private schools should be recognized as valuable national assets.

PK ԃ-Xyeeops/xhtml/tables.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

TABLES, FIGURES, AND BOX

TABLES

2.1

Features of Accountability Models

7

2.2

Accountability System by Type of Government Policy Toward Private Schools

10

2.3

Evidence of Public–Private Partnership in Asia and the Pacific

14

3.1

Primary and Secondary School Enrollment in the Republic of Korea

15

3.2

Number of Lower Secondary Schools in the Republic of Korea

16

3.3

Number of Lower Secondary School Students in the Republic of Korea

16

3.4

Number of Upper Secondary Schools in the Republic of Korea

17

3.5

Number of Upper Secondary School Students in the Republic of Korea

17

3.6

Educational Conditions in Middle Schools in the Republic of Korea

18

3.7

Educational Conditions in High Schools in the Republic of Korea

18

3.8

Compulsory Education in the Ministry of Education Budget

19

3.9

PISA Scores and Ratio of Variance between Schools

28

3.10

Impacts of Private School Policy on Policy Goals for the Education Sector

30

5.1

Public–Private Partnership Achievements by Type of Private School Policy

44

FIGURES

1.1

Secondary School Enrollment Rate

1

2.1

Policy Goals to Improve Public–Private Partnership

4

2.2

Types of Agreements for Public–Private Partnership

5

2.3

Areas of Public–Private Partnership in Education

6

2.4

Four Types of Government Policy toward Private Schools

9

3.1

Public versus Private Enrollment in Lower Secondary Education

16

3.2

Public versus Private Enrollment in Upper Secondary Education

18

3.3

Average PISA Scores in the Republic of Korea by School Type

28

4.1

Trends in High School and College Enrollment Rates

31

4.2

Trends in the Number of Students in Private Middle Schools and Percentages of Private Middle Schools, Students, and Teachers

32

4.3

Trends in the Number of Private High School Students and Percentages of Private High Schools, Students, and Teachers

33

4.4

Trend of Ordinary Subsidies to Private High Schools

36

4.5

Trends of Allocation Tax Amount for Private High Schools

37

4.6

High School Enrollment Rates, Private versus Public

41

BOX

Challenges from Public–Private Partnership in the Asian Context

13

PK z-Xmmops/xhtml/title.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan

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ALTERNATIVE WAY TO EXPAND ACCESS AND IMPROVE QUALITY

PUBLIC–PRIVATE PARTNERSHIP IN EDUCATION IN THE REPUBLIC OF KOREA AND JAPAN

DECEMBER 2023

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w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[׮|oύ);ƾe׾/9l_-?k¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[ׯ w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[ׯ w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[ׯ w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[ׯ w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[ׯ w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[ׯ w=ݝٯ}Ge[w_.5P?,^bn{^+?Svwfe׾9l_-?k׿|n߾_Cz{G-廇z|pM{k({Z^/|ܷp^{ώ);_~ms_aE/¾]yE7gkQYkl={r{W˿>8}==-퇯}?rؿ[׬bZo?^? @QT\n'00fi7 .mvPT$0{qNM7vC4= c#7[nu5u8 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Introduction II. Public–Private Partnership in Education A. Purpose and Rationale B. Forms of Public–Private Partnership C. Private School Policy as Public–Private Partnership D. Advantages and Challenges of Adopting Public–Private Partnership in Education E. Impact of Public–Private Partnership on Education Policy III. Private School Policy in the Republic of Korea A. Status B. Public Funding History C. Public–Private Partnership Frameworks D. Effectiveness IV. Private School Policies in Japan A. Status B. Public and Funding History C. Public–Private Partnership Frameworks D. Effectiveness V. Policy Implications and Recommendations A. Main Conclusions from the Republic of Korea B. Main Conclusions from Japan C. Recommendations References Back Cover PK mz-X ops/xhtml/PK |-X%Eops/xhtml/abbr.html Alternative Way to Expand Access and Improve Quality: Public-Private Partnership in Education in the Republic of Korea and Japan